Proposal for GEF Funding
National Capacity Needs Self-Assessment for Global Environmental Management
Country Name: Papua New Guinea
Project Title: National Capacity Needs Self-Assessment for Global Environmental Management
PIMS 3073
GEF Implementing Agency: United Nations Development Programme (UNDP)
GEF Operational Focal Point: Dr Wari Iamo, Secretary of the Department of Environment and Conservation
National Executing Agency: The Department of Environment and Conservation - DEC
Country Eligibility: PNG is fully eligible for GEF assistance
Convention Participation:
Convention / Date of Ratification/ Accession / National Focal PointUNCBD / 16 March 1993 / Dr Wari Iamo, The Secretary
Department of Environment and Conservation
UNFCCC / 16th March 1993 / Dr Wari Iamo, The Secretary
Department of Environment and Conservation
UNCCD / 6th Dec 2000 / Dr Wari Iamo, The Secretary
Department of Environment and Conservation
Other global environmental conventions / See Appendix A
GEF Financing: 200,000 USD
PDF-A: 25,000 USD
Government Contribution: 32,000 USD (in-kind)
Estimated Total Budget: 257,000 USD
Estimated Starting Date: 1st August 2004
Duration: 21 months
CONTENTS
A. BACKGROUND, CONTEXT AND RELATED WORK 5
A.1 PNG’s Sustainable Development Context 5
A.2 Legal Framework 6
A.3 Institutional Framework 7
A.3.1 National Government Departments 7
A.3.2 Universities and Research Institutions 10
A.3.3 Non-government Organisations 10
A.3.4 Industry Bodies 11
A.4 MEAs and International Framework 11
A.4.1 Climate Change 12
A.4.2 Biological Diversity 14
A.4.3 Desertification and Land Degradation 17
A.4.4 Other Key International Conventions 18
B OBJECTIVES AND LINKAGES TO ON-GOING ACTIVITIES 21
B.1 Project objectives and outputs 21
B.1.1 Primary objective 21
B.1.2 Linkages to on-going activities 21
C. PROJECT ACTIVITIES 23
C.1 Project Initiation and Management 23
C.2 Assessment Process 24
C.3 National Report and Action Plan Development 25
C.4. Monitoring and Evaluation 25
D. INSTITUTIONAL FRAMEWORK AND PROJECT IMPLEMENTATION 26
E. BIBLIOGRAPHY 29
F. TIMETABLE 31
G. BUDGET 33
ACRONYMS
BDM Biodiversity Data Management
BioRap Biodiversity Rapid Appraisal Program
CACC Central Agency Coordinating Council
CASP Conservation Areas Strengthening Project
CBD Convention on Biological Diversity
CCAP Climate Change Assistance Project
CCD Convention to Combat Desertification and Land Degradation
CDM Clean Development Mechanism
CFC Chlorofluorocarbon
CITES Convention on International Trade in Endangered Species
CRC Conservation Resource Centre
CSD Commission on Sustainable Development
DAGJ Department of Attorney General and Justice
DAL Department of Agriculture and Livestock
DEC Department of Environment and Conservation
DEH Department of Environment and Heritage
DFAI Department of Foreign Affairs and Immigration
DLPP Department of Lands and Physical Planning
DNPRD Department of National Planning and Rural Development
DoM Department of Mines
DPE Department of Petroleum and Energy
DTCA Department of Transport and Civil Aviation
FCP Forest and Conservation Project
GEF Global Environment Facility
ICAD Integrated Conservation and Development Project
IPA Investment Promotion Authority
IRC Internal Revenue Commission
IWP International Waters Program
MEA Multi-Lateral Environment Agreement
MTDS Medium Term Development Strategy
NAQIA National Agricultural Quarantine Inspection Authority
NBSAP National Biodiversity Strategy and Action Plan
NCSA National Capacity Self-Assessment
NDMO National Disaster Management Office
NEC National Executive Council
NFA National Fisheries Authority
NFS National Forest Service
ACRONYMS
NGO Non-government Organisation
NIP National Implementation Plan
NPD National Project Director
NWS National Weather Service
PinBio Papua New Guinea Institute of Biodiversity
PIREP Pacific Islands Renewable Energy Program
PIU Project Implementation Unit
PNG Papua New Guinea
PNGFA Papua New Guinea Forest Authority
POPs Persistent Organic Pollutants
PSC Project Steering Committee
SPREP South Pacific Regional Environment Program
TWG Technical Working Group
UNDP United Nations Development Programme
UNEP United Nations Environment Program
UNFCCC United Nations Framework Convention on Climate Change
UNU United Nations University
WMA Wildlife Management Area
WTO World Trade Organisation
WWF World Wide Fund for Nature
WSSD World Summit on Sustainable Development
A. BACKGROUND, CONTEXT AND RELATED WORK
A.1 PNG’s Sustainable Development Context
1. Sustainable development is vital to the future wealth and well being of Papua New Guinea, a country rich in natural resources but ranked just 132nd out of 175 countries on the United Nations Human Development Index (GoPNG 2003). Papua New Guinea’s economy is dominated by exports and incomes from mining, petroleum, agriculture, forestry, fishing, and to a lesser extent, construction and transport sectors. Much of the environment of Papua New Guinea has been modified by erosion and land clearing, resulting mainly from traditional agriculture systems and the harvesting of timber (GoPNG 2000). The majority of people practice subsistence agriculture, with higher income earners also selling cash crops, or being involved in mining and forestry operations. The high cultural and economic dependence of the population on the natural resources of Papua New Guinea highlights the importance of sustainable development to Papua New Guinea, as the means of ensuring resources can continue to be used profitably for generations to come.
2. The overarching global framework for sustainable development is the United Nations Commission on Sustainable Development (CSD) and the World Summit on Sustainable Development (WSSD). PNG was involved in the initial global discussions regarding the importance of sustainable development held in Rio de Janeiro during 1992, committed to the Agenda 21 objectives and signed the Convention on Biological Diversity. Since that time PNG has signed up to a large number of international multilateral environment agreements, and has implemented a wide range of domestic environmental legislation and programs. However, there are still significant concerns that the implementation of environment programs is not delivering the on-ground outcomes that are consistent with the intent of the MEAs.
3. PNG’s most influential economic and social policy framework is its Medium Term Development Strategy (MTDS). The core development strategy of the MTDS is: “…export-driven growth, rural development and poverty reduction, including through the promotion of agriculture, forestry, and fisheries on an ecologically sustainable basis. (GoPNG 2003)”
4. This strategy demonstrates PNG’s whole-of-government commitment to sustainable development, as it incorporates the objectives of sustainable development into the overall PNG policy formulation process. However, whilst the economic and policy objectives of the MTDS are fairly clear the environment objectives are not well articulated and the processes for integrating them into development planning are fairly weak.
5. The MTDS recognises that crucial to its success in achieving sustainable development is improving governance structures. This includes addressing the fiscal and capacity constraints which prevent effective governance. Under the MTDS PNG is committed to improving financial management and governance to achieve these goals. The inclusion of governance as an issue under the MTDS recognises the importance of good governance to effective sustainable development, and demonstrates the commitment of the PNG government to capacity building.
6. Through providing a framework for examining integration issues, the NCSA has the potential to facilitate the effective integration of environmental objectives and guidelines into broader economic and social planning.
7. In addition to the links to specific UNDP and other projects listed in section B1.2, the proposal directly responds to the United Nations Development Cooperation Framework (UNDAF) 2003-2007 Objectives 1, Enhanced Leadership and Participation as well as Objective 3, Improved Internal, regional and global integration. The overarching goal is “To support PNG’s national development strategies for achieving sustainable human development and poverty reduction through equality and participation and the sustainable use of the country’s resources while ensuring environmental conservation”.
8. In the UNDP Country Programme 2003-2007 this overarching goal is operationalized through a focus on capacity building and human resource development for: 1) Good governance and 2) Poverty reduction and sustainable livelihoods whereas 2) also includes environmental conservation.
9. Thus, a National Capacity Self Assessment of Global Environmental Management addresses both issues of capacity building (with regard to environmental management) and environmental conservation/sustainable livelihoods. Only through the identification of capacity gaps and needs can a comprehensive strategy to address theses issues be developed. It complements the UNDP PNG governance as well as environment programme and directly supports the UNDAF and Country Programme goals and objectives. Further, a NCSA is the implementation of the major recommendation of the recently completed ‘Environmental Governance in Papua New Guinea’ review undertaken by the Inter-linkages initiative of United Nations University (Tokyo) in collaboration with UNDP Papua New Guinea.
A.2 Legal Framework
10. The National Government of PNG has demonstrated a commitment to sustainable development and environmental protection through its Constitution, its legislation and its policies.
11. The fourth goal of the PNG Constitution states: “We the people of Papua New Guinea declare our fourth goal to be for Papua New Guinea’s natural resources and environment to be conserved and used for the collective benefit of us all, and be replenished for the benefit of future generations”.
12. The Government has recently integrated and updated legislation for environmental protection into the Environment Act 2000. The new Act integrates the previous Environmental Planning, Environment Contaminants and Water Resources Acts into a more efficient and cost-effective framework of regulation. It is administered by the Department of Environment and Conservation. The Act is supported by a number of guidelines and Environmental Codes of Practice, which cover areas of forestry, agriculture, chemical management, industry and landfill. Its main constraints are that lack of capacity and resources severely hinder monitoring and compliance.
13. Biodiversity conservation legislation currently consists of the Conservation Areas Act, the National Parks Act, and the Fauna (Protection and Control) Act. Effective implementation of these acts has proved difficult (Nicholls 2003), in part due to resource, access and capacity constraints. All three Acts need updating as they are unable to provide adequate regulation of more recent large-scale natural resource developments (eg forestry, oil palm).
14. The Organic Law on Local and Provincial Governments (1995) provided for Provincial and Local governments to make powers in relation to natural resource utilisation and environment and biodiversity conservation. Provincial governments have power to make laws on areas such as community, urban and rural development, agriculture, fishing and fisheries, forestry and agro forestry, and renewable and non-renewable natural resources. Local governments have power to make laws on town, city, village and community planning, local environment, domestic animals, flora and fauna and human settlements and the protection of traditional sacred sites. All exercise of power by provincial and local governments under the Organic Law must abide by the Fourth National Goal of the Constitution.
15. Anything not listed as a provincial or local-level government responsibility remains with the National Parliament. The National Parliament cannot make laws on anything listed as a provincial or local-level government responsibility unless it is in the national interest to do so, in which case the National law takes precedence over the provincial or local level law to the extent of inconsistency.
16. The transfer of significant responsibilities and funds to the lower level governments, especially local level governments, was aimed to improve service delivery. Most land in Papua New Guinea is owned locally under a complex system of land tenure, and intuitively local governments are most suited to understanding on-the-ground issues, and most directly accountable for ensuring resources are used sustainably. However, since the passage of the Organic Law, the National Government’s capacity to fund the financial transfers prescribed under the Organic Law has been severely compromised by ongoing budgetary pressures (GoPNG 2003). Key supporting systems have not been established or are poorly developed. There also remains considerable confusion as to the allocation of functions across the various levels of government.
17. The NCSA will be used to investigate and clarify the duties and capacity levels of different levels of government. This will be used to develop a framework and identify the coordination and cooperation between different levels of government necessary to increase PNG’s capacity to deliver on-ground environmental outcomes.
A.3 Institutional Framework
A.3.1 National Government Departments
Department of Environment and Conservation
18. DEC was established in 1986 in recognition of the need to implement the 4th National Goal of the PNG Constitution and the supporting Directive Principles. DEC’s mission statement is, “to ensure natural and physical resources are managed to sustain environmental quality and human well being.” Since introduction of the Organic Law on Provincial and Local Level Government in the mid-1990’s DEC’s role has changed from being an implementation agency for many environment and conservation obligations to a policy coordination and program agency.
19. DEC is responsible for various empowering legislation for proper management and regulation of the physical and social environment to ensure compliance with the 4th National Goal.
Department of National Planning and Rural Development (DNPRD)
20. The role of the DNPRD is to offer leadership in the preparation and implementation of a socio-economic development strategy that will link growth with equity and environmental sustainability and as the primary coordination point for external donors. All foreign aid, including GEF funds, is managed and coordinated through DNPRD’s Aid Coordination and Management Division (ACMD). Further, DNPRD has a central role to play in the incorporation of sustainable development principles into economic planning through its role in developing the MTDS and the critical coordination role it can play in bringing environmental and natural resource development agencies to develop balanced development strategies.
Department of Foreign Affairs and Immigration (DFAI)
21. The key role of the DFAI is to advise on foreign relation matters and administer the government’s foreign policy, to promote international cooperation, peace and security and to foster respect for international law and treaty obligations. DFAI plays the lead role in coordinating input to, and negotiating, all international conventions. The DFAI works closely with line agencies that assume responsibility for implementation of convention obligations once signed.
Department of Attorney General and Justice (DAGJ)
22. The key role of the DAGJ is to provide legal advice and legal representation for the State and its agencies in constitutional, international and domestic legal matters and proceedings. The DAGJ, in conjunction with the DFAI, plays a central role in assisting the government to review proposed international agreements and the legal consequences for the government in signing the agreement. The DAGJ also assists in developing domestic legislation to implement convention obligations, where required or desirable.